"A Failure of Responsibility":
Report to Mayor David N. Dinkins on the
December 28, 1991 Tragedy
At City Coiiege of New York
Prepared by
Milton Mollen
Deputy Mayor for Public Safety
TABLE OF CONTENTB
PREFACE
FACTS
I. INITIAL PREPARATION FOR THE GAMES
II. DECEMBER 20, 19 91 GAME
A. Contract for December 20, 1991 Game
'he Events of December 20. 1991
C.
DECEMBER 28, 1991 GAME
A. Promotion Contract for December 28. 1991 Game
B. Contact with "AIDS Education Outreach Program "
C. Distribution and Sale of Advance Tickets
D. Prgrngtign of the pecember 28, 199^ Game
E. security Arrangements
1. X-Men Security, Inc.
2. CCNY Security Arrangements
Events of December 28. 1991
Related Information
Failure of Responsibil itv of CTOY
of Responsibility by Sean Combs
F. Failure of Responsibility of City Agencies
1. New York City Police Department
2. 911 Police/EMS Communications
RECOMMENDATIONS
A. CUNY
B- CCNY
C. Representatives of Student Organizations
D. City Agencies
1. Police Department
2 . Emergency Dispatch Operations
3. Fire and Building Departments
E. To Our Fellow Citizens
EXHIBITS
INDIVIDUALS INTERVIEWED
SUBMISSIONS
FRE7KCS
On the evening of Saturday, December 28, 1991, at a
celebrity basketball game at the City College of New York (CCNY) ,
eight individuals lost their lives in a stairwell leading to the
CCNY Nat Holman Gymnasium. A ninth victim died on January 1,
1992 as a result of injuries sustained during the same incident.
Immediately following this tragic occurrence, Mayor David N.
Dinkins directed me to launch a thorough and expeditious
investigation into the facts surrounding the event, the causes of
the tragedy and recommendations to avoid a recurrence of a
similar tragedy.
This report was compiled from facts adduced during 107
interviews conducted of CCNY officials and students, CUNY
officials, individuals Tnvolved in promoting the event, CCNY and
private security personnel at the event, representatives of the
radio station KISS/FM, other eyewitnesses to the incident, as
well as personnel from the New York City Police Department, the
New York City Emergency Medical Service, the New York City Health
Department, the New York City Fire Department, New York City
Building Department and the Medical Examiners Office.
Reviews were also conducted of official City agency
reports, documents and audio-tapes, including tapes of 911 calls,
as well as amateur video tapes of the interior of the gym, and
the lobby and the exterior of the building in the vicinity of the
I38th Street entrance to the gym taken during the incident in
question. A personal visit to the gymnasium and the surrounding
area was also made.
While there is a great deal of confusion attending the
circumstances of this chaotic and tragic event and some
inconsistencies exist in witnesses' accounts, the following
represents the facts which were ascertained during this
investigation.
FACTS
I. INITIAL PREPAJIATION FOR THE GAMES
During the months of November and December of 1991,
the CCNY Evening Student Government (ESG) decided to sponsor a
series of celebrity basketball games to be held in the Nat Holman
Gymnasium at CCNY in order to raise funds for an evening student
scholarship fund. Cassaundra Kirnon, the ESG President, is a
full-time employee at the New York City Department of Cultural
Affairs. In preparation for the events, Ms. Kirnon contacted Mr.
John Araouzos, the Associate Athletic Director at CCNY, on or
about December 2, 1991 in order to determine the availability of
the Nat Holman Gymnasium, located in the CCNY Finley Center, for
certain dates in the month of December. Mr. Araouzos indicated
that the gym would be available on December 20 and 28th; however,
he advised Ms. Kirnon that she would have to receive approval
from Jean Charles, the Director of the Finley Center, in order to
comply with appropriate reservation procedures. Following that
conversation, Ms. Kirnon spoke to Mr. Charles and advised him of
her intention to have a series of fundraising basketball games.
Between December 2, 1991 and December 16, 1991, Mr. Araouzos
received calls from Ms. Kirnon and Jose Frazier, Treasurer of the
ESG, reiterating their request to reserve the gym — in each
instance, Mr. Araouzos referred them to Mr. Charles. During that
same period, Mr. Araouzos spoke to Mr. Charles on several
occasions in order to remind him of the need to make appropriate
arrangements for the events, if they were to go forward.
On or about December 15, 1991, Mr. Charles and Ms.
Kirnon discussed the games which the ESG intended to organize.
At that time, Ms. Kirnon described the two events as celebrity
basketball games and she indicated her intention to have a "step
show" during the half-time period of the games for entertainment.
(Note: Step shows are boisterous events, usually held on college
campuses, where organized teams compete against each other by
performing highly choreographed rhyming routines). Mr. Charles
advised Ms. Kirnon that he would check with appropriate college
officials to determine whether step shows were permissible in the
gymnasium. Sometime thereafter, Mr. Charles spoke to Mr. Paul
Bobb, the CCNY Athletic Director, and was advised that step shows
were not permitted in the gym. Mr. Charles later relayed this
information to Ms. Kirnon.
On or about December 17, 1991, Mr. Charles provided
Ms. Kirnon with two reservation applications for her to complete
in order to secure the use of the gym on the dates in question,
namely, December 20 and 28, 1991. The reservation forms provided
to Ms. Kirnon requested various information about the intended
event — including a description of the event, expected
attendance and the need for special arrangements. The two
applications which Ms. Kirnon submitted identified both events as
"celebrity" basketball games and the notation "N/A" was made with
regard to the expected attendance of the games. (Copies of the
reservation forms completed by Ms. Kirnon are attached hereto as
Exhibit A) . The space for the description of the events was left
blank — and no reference was made to the participation of rap
artists in the games. When Ms. Kirnon returned the forms to Mr.
Charles, no inquiry was made by Mr. Charles to determine the
types of celebrities who would be participating in the games or
the exact nature of the events. Mr. Charles does not recall
whether Ms. Kirnon, at that time, indicated that the game would
involve rap artists. During an initial interview, Mr. Charles
stated that when he received the forms from Ms. Kirnon and the
issue of ticket sales arose, Ms. Kirnon advised him that she had
made arrangements with a promoter who would handle all of the
arrangements. In a subsequent interview, Mr. Charles indicated
that Ms. Kirnon had said that she had^'some people "helping" her
with organizing the event. Mr. Charles made no further inquiries
into who the promoter or the "helpers" were.
On December 18, 1991, the reservation forms were
approved by Mr. Charles and copies thereof were forwarded to the
CCNY Business office, the Security Office, the Buildings and
Grounds Department and the Athletic Office. Although normal
procedures require Mr. Charles to have a meeting with Ms. Kirnon
and representatives of the various college departments involved
in the use of the gymnasium (i.e. Security, Athletics, etc.) to
discuss necessary arrangements, no such meeting was held. Upon
receipt of the reservation forms representatives of the various
offices reviewed them and notified Mr. Charles of the fees to be
charged to the ESG for the costs attendant to the use of the
gym — those figures were noted by Mr. Charles on the reservation
forms. Among the fees charged to the ESG were the cost of CCNY
security for the event which was calculated by Mr. Milton David
of the CCKY Security Office who, after conferring with Mr.
Charles, set the security detail for the games at one CCNY
security supervisor and five Pinkerton security guards (Note: The
CCNY's security force is comprised primarily of private security
guards via a contract with a private security firm. The private
security guards are under the control and direction of CCNY
security supervisors. During the month of December, 1991 and for
some time prior thereto, the contracting agency had been
Pinkerton Security & Investigation Services) . Mr. David stated
t..at, when he spoke to— Hr. Charles about the event, Mr. Charles
indicated that the games would probably be attended by
approximately 500 persons.
When Mr. Charles subsequently spoke to Mr. Araouzos
about the scheduled events, Mr, Araouzos advised Mr. Charles of
the need to ensure that the necessary insurance was in place for
the games. At that time, Mr. Charles contacted the CCNY Business
Office and was advised that the insurance costs for each game
would be $535. When Mr. Charles relayed that information to Ms.
Kirnon, she indicated that the "persons helping" her with the
event would provide the necessary insurance. According to Mr.
Charles, in the course of a subsequent conversation with Paul
Bobb, Mr.Bobb indicated that since the games were "student"
events, no insurance was needed. As a result, Mr. Charles never
did anything further to determine whether the necessary insurance
was obtained for the games.
II. DECEMBER 20, 1991 GAME
A. Contract for December 20. 1991 Game
After having decided that ESG should sponsor the
celebrity basketball games, Ms. Kirnon contacted Mr. Tuffy
Questel ("Tuffy") of the Video Music Box. Ms. Kirnon had been
directed to Tuffy by a co-worker at the New York City Department
of Cultural Affairs. Following these initial contacts, the ESG
entered into a written contract with the Video Music Box for the
December 20, 1991 game. The contract, dated December 16, 1991 (a
copy of which is attached hereto as Exhibit B) , provided that the
Video Music Box would arrar • to have 50 celebrities to play in
the game and that the ESG would secure the use of the Nat Holman
Gymnasium for the event. The contract further provided that the
ESG would receive $1,800 as full compensation for the services
provided. According to Ms. Kirnon, the $1,800 amount was
8
intended to cover the costs attendant to utilizing the CCNY gym
and the remaining monies were to be utilized for an evening
student scholarship fund. Ms. Kirnon also indicated the December
16th contract was prepared by ESG based on a form contract which
Mr. Charles provided to her from the CCNV Business Office. Mr.
Charles denied providing any such document to Ms. Kirnon. I
note, however, that both contracts entered into by Ms. Kirnon for
the celebrity basketball games followed closely the standard form
of contract utilized by the college administration (a copy of
which is attached hereto as Exhibit C) .
B. Additional Security Arrangements For the December 20th
On December 19, 1991, Ms. Kirnon contacted the 26th
Police Precinct in order to secure the use of wooden police
barricades for the December 2 0th game. Ms. Kirnon spoke to
Police Officer Felicia Duke, the precinct's Comaiunity Affairs
Officer, who had no prior knowledge of the event. At that time.
Officer Duke asked Ms. Kirnon if she had contacted the CCNY
Security Office, and Ms. Kirnon replied that she had not. Officer
Duke noted that under normal procedures, the precinct would be
contacted by the CCNY Security Office if police assistance was
needed for an event at the campus. During, their conversation,
Officer Duke requested that Ms. Kirnon send her a copy of the
flyer for the December 20th game via the fax machine.
Upon receipt of the flyer for the December 2 0th game
(a copy of which is attached hereto as Exhibit D) , Officer Duke
became concerned about the event, particularly in view of the
various artists listed on the flyer. Officer Duke stated that
she then telephoned the CCNY Security office and spoke to Mr.
Charles Delaney, the CCKY Director of Security. Mr. Delaney had
no knowledge of the event and indicated that he would contact Ms.
Kirnon and call Officer Duke back. Mr. Delaney then telephoned
Ms. Kirnon and raised concerns about security for the December
20th game. According to Ms. Kirnon, Mr. Delaney indicated that
he would arrange to have some officers from the precinct to cover
the game, along with CCNY security, and Ms. Kirnon advised him
that Tuffy would bring some security as well. Mr. Delaney then
returned Officer Duke's call and advised her that he would
provide necessary CCNY security and Officer Duke indicated that
police would also be on hand.
During subsequent interviews, Mr. Delaney did not
recall these conversations and stated that he was first made
aware of the December 20th game only a few hours before the
Mr. Paul Bobb stated that on December 18, 1991, he
came across the flyer for the December 20th game. Upon reviewing
the flyer, Mr. Bobb had some concern about the event primarily
because of the advertisement of a step show during the game's
half-time period. Despite this concern, Mr. Bobb aclcnowledged
that he never took any action on the issue. Mr. Bobb was also
concerned about security but since he assumed that Mr. Charles
had contacted the Security Office, he did not speak to Mr.
Delaney about the matter.
During that period of time, Mr. Araouzos showed Mr.
Charles the flyer for the December 20th game, and noted that the
ESG was not mentioned on the flyer, and that a half-time step
show was advertised in violation of college rules. Mr. Charles
stated that when he later spoke to Ms. Kirnon about these issues,
she advised him that the flyer was a "mistake".
C. The Events of December 20, 1991
On the evening of December 20, 1991, the police
detail, consisting of a sergeant and six officers, arrived at the
CCNY gym at between 5:00 and 6:00 p.m. Contrary to initial
expectations, approximately 2,200 to 2,500 spectators attended
the December 20th game. With the exception of a minor incident
involving shoving by persons on line awaiting entry into the
building, there were no incidents of unruly or violent behavior.
Mr. Araouzos was present at the December 20th event
and, although the event occurred without incident, he was
concerned over what he perceived to be inadequate security. Mr.
Araouzos expressed those concerns to Ms. Kirnon and Mr. Charles
that evening. Ms. Kirnon and Mr. Charles both replied by stating
the game was proceeding smoothly and indicated no concern as to
security.
III. DECEMBER 28, 1991 GAME
A. Promotion Contract for December 28. 1991 Game
In early December 1991, during a discussion of the
"Magic" Johnson story, Sean Combs (a/k/a Puff Daddy) decided to
arrange a celebrity basketball game, featuring rap artists, in
order to raise concern over the AIDS crisis. Mr. combs had
discussed the game with rap artist Heavy D. who agreed to
participate in the event. Shortly thereafter, during a
discussion of potential sites, Mr. Combs asked an associate, Ms.
T^ra Geter, if she would contact CCNY to determine if the college
would host the game.
In early December 1991, Ms. Geter telephoned CCNV and
was referred to the ESG office. Ms. Geter spoke to Jose Frazier.
During their initial conversation, Mr. Frazier indicated that the
ESG was interested in sponsoring the event and that the grym was
available on Saturday December 28, 1991. Ms. Geter was also
advised of the capacity of the gym (i.e. 2,730 persons). Mr.
Frazier further explained to Ms. Geter the various costs
associated with utilizing the CCNY gym and he expressed the
interest of the ESG to raise money for an evening student
scholarship fund. It was ultimately agreed that the ESG was to
receive the sum of $1,850 to pay the costs for the use of the gym
and the remainder to be applied to the scholarship fund.
by Mr. Combs for a deposit to be paid to the ESG. On that same
day, Ms. Geter met Ms. Kirnon and gave the deposit to her. Ms.
Kirnon signed a contract on behalf of the ESG and Ms. Geter
signed the contract on behalf of Sean Combs (A copy of the
contract is attached hereto as Exhibit E) . The contract provided
that ESG would be paid $1,850 and that Mr. Combs would provide a
minimum of 20 celebrities for the December 28th game. The
contract further stipulated;
"The Evening Student Government will provide the
facility, additional security with metal detectors,
chairs and tables. Insurance for the event will be
provided by the Contractor (Sean Combs) according to
CCNY regulations as well as all celebrities,
promotional materials and the needs of the artists
involved. In the event that the game is canceled, the
deposit will not be refunded. Also, the Contractor . ,
{Sean Combs) should clearly have the responsibility zo
return collected funds from prepaid tickets to
spectators.
"The Contractor ( n Combs) shall carry paid up
insurance to prote-; the Contractor (Sean Combs), the
Evening Student Government and City College of New
York (CCNY) against any and all claims, loss or
damage, whether in contract or tort, including claims
for injuries to, or death of persons, or damage to
property, which are attributable to the negligence or
any other acts of the Contractor (Sean Combs) , its
employees, or otherwise.
"The Contractor (Sean Combs) assumes the risk of, and
shall be responsible for, any loss or damage to CCNY
property, including property and equipment leased by
CCNY, used in the performance of this Agreement.
"The Contractor ( Sean Combs) agrees to indemnify the
Evening Student Government and CCNY and hold each of
them harmless from any and all liability or claim for
damages due to any such loss or damage to any such
property on the campus."
That afternoon, Ms. Geter returned to Mr. Combs'
office with the contract. Mr. Combs was speaking on the
telephone at the time, and Ms. Geter then placed the contract in
an envelope and left it for Mr. Combs. Mr. Combs stated that he
read the contract in a cursory manner but that he never read the
contract in detail prior to the event, and he acknowledged that
he never obtained insurance for the event.
B. Contact Wi th "AIDS Education Outreach Program"
Mr. Combs stated that he directed Ms. Geter to contact
various AIDS prevention organizations in order to make
arrangements to have representatives of such an organization
present at the December 28th game to distribute AIDS education
material and condoms. Mr. Combs also requested that Ms. Geter
arrange to make a donation of a portion of the proceeds of the
game to such an AIDS organization. Following Ms. Geter 's initial
contacts, she was referred to the Office of the Mayor and
ultimately directed to the AIDS Education and Community Outreach
Unit of the New York City Health Department. According to Ms.
Geter, she telephoned and spoke with Mr. Norman Williams at that
office on two or three occasions, and requested that the office
have a table and someone at the December 28th game in order to
distribute AIDS education material and condoms. She indicated
that Mr. Williams advised her that there would be no problem with
her request, although he would need to speak to another person in
the office, a Peter Serries. Ms. Geter stated that when she
raised the possibility of monetary donations with Mr. Williams
during their conversations, he stated that his office, as a unit
of a City department, could not accept money but that there were
several private AIDS organizations which would accept
contributions, several of which Mr. Williams allegedly named for
Ms. Geter. During a subsequent interview, Ms. Geter explained
that she was scheduled to leave New York on December 20, 1991 for
approximately one week to attend a family funeral, and that on
December 19th, she left a telephone message with Mr. Williams'
office to contact either her or Mr. Combs to confirm the
attendance of someone with appropriate material at the game. Ms.
Geter had no further involvement in the matter. Mr. Combs
indicated that he had assumed that Ms. Geter had made all the
necessary arrangements in this regard before she left, and he
never had any contact with the Health Department.
Mr. Williams stated that his first contact with Ms.
Geter was on or about December 18, 1991 at which time she
requested someone from his office to attend the December 28th
game and hand out AIDS education material. Mr. Williams advised
Ms. Geter that he would take down the information and forward it
to Mr. Peter Serries, who would handle the request. Mr. Williams
then relayed the information to Mr. Serries on December 18th.
The following day, Mr. Serries spoke to Ms. Geter and requested
that she put her request in writing in order that he could make
the necessary arrangements for compensatory time for the staff
person who would be at the game. Ms. Geter never submitted a
written request, and as a result, no one was sent to the game.
Mr. Williams and Mr. Serries both deny any conversation with Ms.
Geter regarding the donation of monies to the AIDS Education and
Community Outreach Program.
C. Distribut ion and sale of A dvance Tickets
Sometime following Ms. Geter 's initial contact with
the ESG at CCNY, Sean Combs authorizes the printing of 2,000
advanced sale tickets for the December 28, 1991 game. (A copy of
Mr. Combs' print order is attached hereto as Exhibit F) . During
that same period, flyers were printed advertising the event and
indicating that advanced sale tickets could be purchased either
at the Apollo Theater or at the Boss Emporium (A copy of the
flyer is attached hereto as Exhibit G) . According to Mr. Combs,
the Apollo Theater ultimately declined to distribute or sell
tickets to the event because of the Apollo Theater's affiliation
with a radio station which was in competition with KISS/FM, the
station which had been retained to advertise the game,
representative of the Apollo Theater, however, agreed to ref«
persons inquiring about tickets to the Boss Emporium.
The Boss Emporium eventually sold 1,440 advanced sales
ticketo for the event at a cost of $12.00 per ticket. The Boss
Emporium received $.50 for every ticket sold. An additional 70
tickets were sold by two of Mr. Combs' friends. KISS/FM provided
10 pairs of free advance tickets to its listeners and an
additional 100 complimentary tickets were handed out by Mr. Combs
and Heavy D.
Tickets for the event which were purchased on the
evening of the game at the g^-mnasium were $20.00 each. According
to Mr. Combs, approximately 500 tickets were sold at the game.
D. PromQtigp of the pecember 38, 1991 Gamg
Mr. Combs had requested an acquaintance, Mr. Louis
Tucker, to contact the KISS/FM radio station with regard to the
promotion of the game through radio advertisement spots. Mr.
Tucker contacted an account executive at the station and received
information regarding the cost and times of advertisements. Mr.
Tucker relayed the information to Mr. Combs and it was determined
that they would purchase ten commercials to be aired during the
period from December 20 to December 28, 1991.
During the discussions with the radio station, it was
agreed that the radio station would be provided with ten pair of
free advance tickets to give to its listeners and the station
would provide approximately eighteen thirty-second promotional
spots for the game free of charge. It was also agreed that
KISS/FM would be permitted to hang posters in the gym for the
game.
on the evening of December 27, 1991, the day before
the game, Heavy D and Mr. Combs participated in a weekly radio
program at the KISS/FM station for the countdown of the top
records. During the course of the program. Heavy D and Mr. Combs
made some references to the game to be played the following day
at CCNY.
E. SeguritY Arretpqgmentg
1. X-Men Security, Inc.
Sean Combs requested Louis Tucker to make arrangements
for security at the game. Although Mr. Combs intended to bring
his seven security guards the event, he wanted a larger
security presence at the event to conduct frisks and provide
crowd control. Mr. Combs suggested that Mr. Tucker contact Spike
Lee's movie production company to obtain a reference for a
security guard company. As a result of those contacts, Mr.
Tucker was referred to the X- Men Security Inc. (Note: x-Men
Security, Inc. is a licensed security firm which, contrary to
earlier reports, is not related to the Fruit of Islam) .
On or about December 26, 1991, Mr. Tucker telephoned
Mr. Anthony Richard, the President of X-Men security, Inc. {"X-
Hen") and requested that the X-Men provide security at the game.
(Note: Mr. Richard is a correction officer in the New York City
Department of Correction. He had been granted permission on May
3, 1990 by the Department of Correction to engage in employment
with a security firm) . Mr. Richard indicated that he usually
does not accept requests on short notice; however, since Mr.
Tucker indicated that Heavy D. and Spike Lee had referred him to
the X-Men, Mr. Richard agreed to provide security for the game.
During his initial conversations with Mr. Tucker, Mr. Richard
advised him of the X-Men 's normal fees for security, which Mr.
Tucker indicated were too high. In subsequent conversations, Mr.
Tucker told Mr. Richard that the game was a charity event and, as
a result, Mr. Richard ultimately agreed to charge 51,500 for
approximately 15-20 guards. It was further understood that the X-
Men would be utilized solely for security outside the building
and to conduct frisks of thos_e entering the building.
I
CCNY Security Arrangements
On Monday, December 23, 1991, Jean Charles received a
telephone call from Ms. Kirnon requesting additional security for
the upcoming game on December 28th. As previously indicated, the
security detail which had been set for the December 23th game was
one CCNY security supervisor and five Pinkerton guards.
According to Mr. Charles, after he received Ms. Kirnon 's call, he
went to Mr. Delaney's office and relayed her request to Mr.
Delaney. Mr. Charles also indicated that he advised Mr. Delaney
that one of the police officers at the December 20th game had
suggested that the college have wooden barricades on hand for the
upcoming game. Mr. Charles stated that Mr. Delaney made a
notation on his desk pad of these matters. Mr. Delaney does not
recall this conversation and maintains that he never spoke to
anyone about the December 28th game until Friday, December 27th.
During the week of December 23rd, Mr. Araouzos' office
began receiving an unusually large number of phone calls
requesting information about tickets to the December 2 8th game.
On or about Thursday, December 26th, Mr. Araouzos came across a
flyer for the December 2 8th game and, as a result, became
concerned about the event.
On Friday, December 27th, Mr. Araouzos spoke with Paul
Bobb and showed him the flyer for the December 28th game. Mr.
Araouzos also spoke to George McDonald, CCNY Vice President for
Student Affairs, and when Mr. Araouzos raised a concern over the
security for the event, he was directed to contact Mr. Delaney.
Sometime thereafter, Mr. Araouzos gave the flyer for the December
28th game to Mr. Timothy Brown, a CCNY security supervisor who
worked under Mr. Delaney.
At approximately 2:00 p.m. on December 27th, Mr. Brown
brought the flyer to Mr. Delaney 's attention. Upon reviewing the
flyer, Mr. Delaney became concerned about the nature of the
event, and the large numbers of persons it might attract. He had
a copy of the flyer delivered to Police officer Felicia Duke at
the 26th Precinct and, when Mr. Delaney telephoned officer Duke
later that day, he expressed his concerns about the game.
Officer Duke agreed to take steps to increase the police detail
'for the event, officer Duke later spoke to the commanding officer
of the precinct, and the Borough Task Force was notified to be in
the vicinity of and be ready to respond to the CCNY area the
following evening.
Mr. Delaney also contacted Cassaundra Kirnon's office
nd left a message for her to contact him that afternoon.
f
^^^^ At that approximate time, Ms. Kirnon was meeting with
Sean Combs at his office to discuss the arrangements for the
game. During their initial conversation, Mr. combs advised Ms.
Kirnon that approximately 1,500 advance sale tickets had been
sold to the event. Mr. Combs also explained that he had arranged
to have a security force (which he assumed to be the Fruit of
Islam) to be at the game, and that many of the rap artists would
be bringing their own security. Mr. Combs further indicated that
he intended to place some of the guards at the entrances to the
building in order to conduct frisks of those attending the game,
and additional guards would be stationed inside the gym and
others outside the building. Mr. Combs expressed the view that,
given the various security forces which would be present at the
game, it would be necessary for CCNY security to play a
coordinating role for the security.
In response to Mr. Combs' remarks, Ms. Kirnon stated
that she would relay his" request to Charles Delaney at CCNY and
she telephoned Mr. Delaney from Mr. Combs' office. During that
telephone conversation, Ms. Kirnon advised Mr. Delaney of her
conversation with Mr. Combs and Mr. Delaney agreed that his
security people would coordinate security. According to Ms.
Kirnon, Mr. Delaney was also pleased to learn that the Fruit of
Islam would be at the event given their experience with young
black adults. Mr. Delaney raised some concern over the size of
the expected crowd. Ms. Kirnon advised Mr. Delaney that
22
approximately 1,500 tickets had been sold to date, and, in
response, Mr. Delaney told Ms. Kirnon that she should take steps
to stop advance ticket sales.
Although Mr. Delaney indicated that following his
conversations with Ms. Kirnon, he took steps to discuss the need
for increased security at the event with his assistant, Milton
David, Mr. David stated that no such discussion took place that
afternoon.
On the evening of the 27th of December, Milton David
was in the CCNV security office when the dispatcher received a
call at approximately 6:00 p.m. from an individual seeking
tickets to the December 23, 1991 game. The dispatcher advised
the caller that the office did not handle the tickets and that as
far as she was aware, the event was sold out. As a result of
that phone call, Mr. David spoke to the dispatcher about the game
and, at that time, the dispatcher showed him the flyer for the
December 28th event. Upon viewing the flyer, Mr. David
"panicked". Realizing that the CCNf security detail for the
event of one CCNY security supervisor and five guards was
inadequate, Mr. David immed ely commenced efforts to secure
additional guards for the event. Most of the Pinkerton guards
Mr. David spoke to that evening refused to work at the game. Mr,
David also called Mr. Charles and the Pinkerton agency
representative but both had left for the evening. Mr. Delaney
23
not in his office, and Mr. David stated that he did not have
Mr. Delaney's home telephone number.
F. Events o f December 28. 1991
Mr. David came into work at 11:00 a.m. on December
28th, although it was his day off, in order to ensure that
increased security arrangements would be made. He was eventually
able to secure the presence of an additional 17 security guards
to cover the event by drawing from the officers detailed to other
CCNY buildings throughout the campus. Before leaving for the day
at 2:00 p.m., Mr. David also contacted the 26th Precinct and left
a message about the event.
During the morning of December 28, 1991, ESG
representatives arrived at the gymnasium and began to make
preparations for the game. By approximately 2:00 p.m.,
individuals began arriving at the campus and forming lines in.
front of the 138th Street entrance to the gymnasium which fronts
on Convent Avenue.
The 138th Street entrance consists of two sets of
glass entrance doors on either side of a glass enclosed lobby
area. Each set of glass doors enter into an interior vestibule
area and an interior set of glass doors which open into the
lobby. The lobby leads to a steep 12 x 7 foot descending
stairwell to the gym which is located in the front area of the
lobby. Four metal fire doors are positioned at the bottom of the
stairwell each of which can only be opened from inside the
gymnasiua into the stairwell. (Note: At my direction, Building
Department representatives visited the scene and determined that
the stairway was constructed within code provisions.)
At approximately 3:00 pm, a large crowd had already
assembled in front of the 138th Street entrance awaiting entry to
the gymnasium. At that approximate time, Anthony Richard, the
President of the X-Men, arrived with a few of his personnel to
begin making necessary preparations. Mr. Richard was surprised
by the large number of people already congregating at the
building. X-Men personnel took steps to position wooden
barricades which were located in the area in front of the gym to
form ticket lines. An advance ticket holders line was formed at
the northern set of glass doors parallel to convent Avenue; a
non-ticket holders line was similarly formed at the southern set
of glass doors. During this time, Mr. Richard entered the
building and introduced himself to Louis Tucker, who he had not
met prior to that night. Mr. Richard stated that Mr. Tucker was
his only contact with the sponsors of the event.
The CCNY security supervisor for the event, Timothy
Brown, entered the l38th Street lobby at approximately 3:30 p.m.
and spoke to Cassaundra Kirnon. During that conversation, Ms.
25
Kirnon introduced Mr. Brown to Louis Tucker, who she indicated
was in charge of security for the promoter. Mr. Richard was also
in the lobby at that time. According to Ms. Kirnon, she advised
Mr. Brown that, in accordance with her previous conversation with
Mr. Delaney, the CCNY security would be in charge of coordinating
security and Mr. Brown consented. Mr. Brown did not recall that
conversation although he acknowledged meeting Louis Tucker. Mr.
Tucker stated that he never represented himself as the head of
the promoter's security and never discussed security with anyone
that evening.
No conversations occurred among Mr. Brown, Mr. Richard
or Mr. Tucker regarding the coordination of the security forces
at the event. Nor were there any conversations between any of
these three men and any police officer regarding the coordination
of security or any form of communication among them.
Mr. Brown stated that when the Pinkerton guards
arrived for duty at the gymnasium, they were stationed at the
various entrances to the building in order to ensure that the
entrances, other than 138th Street entrance, remained closed.
Mr. Brown, Captain Vargas, one of the senior Pinkerton guards on
duty, and several other guards remained in the vicinity of the
138th Street entrance during various times in the evening.
At approximately 3:45 p.m., Jessica Rosenblum,
associate of the promoter, Sean Combs a/k/a Puff Daddy, arrived
at the gymnasium and began to make necessary arrangements for the
handling of tickets and ticket sales for the game. Sean Combs
also arrived at the gymnasium during this time. Two tables were
placed in the lobby near the top of the stairs and two women were
seated at each table. Ms. Rosenblum had previously purchased two
rolls of numbered tickets and a clicker to assist in counting the
number of persons attending the game. Individuals seeking entry '
to the game were to turn in their advance tickets or pay $20.00
at the tables and, in return, they would be given a numbered i
ticket and their hand would be stamped. Thereafter, these I
individuals would descend the stairs and enter the gym after ^
turning in the numbered ticket and having their hand checked by a I
man standing inside the stairwell at the door. The far left hand
door at the bottom of the stairwell was the only door open in
order to control entry Ifito the gym. The guard at the bottom of j
the stairwell was neither an x-Men guard nor a CCNY security '
guard, but was apparently a guard hired by Sean Combs who could '
not be identified by Mr. Combs in subsequent interviews.
By 4:00 p.m., approximately 1,500 persons were lined
up outside the gym — at this time the crowd was orderly and
waiting in line. During this period a group of 100 Fruit of
Islam members were circulating in front of the building and
selling newspapers. At one point, the group was called to
attention by a senior member and the majority of the group
marched off the campus. Mr. Delaney, who arrived on the campus
at this approximate time, witnessed this incident and he
mistakenly assumed that those Fruit of Islam members who had
remained were to provide security for the event. Mr. Delaney
then proceeded to his office across Convent Avenue, where he had
a full view of the l38th Street entrance doors to the gym.
Sergeant Randall and ten police officers arrived at
the CCNY campus at approximately 5:00 p.m. and a large crowd
which they estimated to be 200 - 300 were assembled on Convent
Avenue and the sidewalk, sergeant Randall detailed officers to
various locations on Convent Avenue in order to clear the street
for traffic. He then proceeded into the 136th -Street entrance to
the lobby area and asked to speak to the head of security. At
that time, sergeant Randall was introduced to Anthony Richard —
no conversations regarding security took place. Sergeant Randall
then exited the building and stationed a few officers near the
front lobby doors. • ■ ■ .
At approximately ' 30 p.m., ticket holders to the game
were permitted to enter the ouilding through the northern
entrance doors. As individuals entered the first set of doors,
X-Men security guards conducted body frisks after which, the
individuals proceeded to the ticket tables. The flow of people
was controlled by the guards conducting the frisks, although the
crowd outside the building began to increase and mill about in
front of the lobby entrance. At approximately 5:30 p.m., several
of the celebrities who were to participate in the gane began
arriving and they were escorted into the 13ath Street entrance to
the building by Mr. Combs' assistants. As a result, the crowd of
people awaiting entry to the game began to become restless and
push forward. Police officers and several X-Men security
personnel then began to cordon off the area on the sidewalk
immediately in front of the lobby to create a frozen zona. The
video tape taken of the exterior of the building beginning at
approximately 5:20 p.m., demonstrates that a large crowd at this
time was milling about in front of the lobby entrance and
somewhat out of control.
At approximately 5:45 - 6:00 p.m., the crowd continued
to increase in size and were pushing forward into the entrance
areas. The crowd also began to topple the barricades in front of
the lobby and press up against the glass windows. Several police
officers and X-Men security personnel positioned themselves in
front of the glass doors and windows attempting to keep the crowd
back, but the surge continued. Although the ticket holders' line
leading to the northern entrance was still being allowed into the
lobby at this time, several non-ticket holders gained access to
the lobby through the northern set of doors. When individuals on
the ticket holders line observed the sale of tickets taking place
nside the lobby they began complaining and pushing forward. At
at same time, non-ticket holders were being permitted to enter
e lobby from the other entrance.
Witnesses inside the lobby stated that the glass
ndow panes in the lobby began to sway bacause of the movement
f the crowd. One of the glass panes in the glass doors was
roken and the police were requested to enter the lobby and clear
e area. The police complied with that request. Mr. Combs
dioated that during this time period, he approached several
fficers in the lobby and requested that they utilize a bullhorn
0 advise the crowd outside that non-ticket holders should leave
"■e campus. It is unclear whether such efforts were made.
At 6:04 pm. Sergeant Randall requested the Manhattan
orth Task Force to respond to the scene in order to assist with
■e large crowd.
At approximately 6:15 p.m., Anthony Richard and
ergeant Randall were outside the 138th Street lobby entrance
with their respective personnel attempting to keep the crowd from
surging into the lobby. In an attempt to ease the pressure of
the crowd at that entrance, they decided to move some of the
crowd down toward the 136th Street entrance to the building. The
136th Street entrance, which also fronts on Convent Avenue,
provides access to a corridor leading to the 138th Street
entrance lobby. Several X-Men security personnel together with
several police officers moved down to the 136th Street entrance
and began providing entry to the building to ticket holders and
ticket purchasers. Mr. Richard and Sergeant Randall were both
positioned at this location. As individuals entered the 136th
Street entrance, they were frisked by X-Men security and were
directed down the corridor. Within several minutes the pressure
of the crowd at this entrance increased and the police officers
and security personnel attempted to hold the crowd back. Several
people began passing out and were pulled into the doors and
revived. Eventually, the crowd stormed through the second set of
glass doors at the 136th Street entrance and ran down the
corridor.
The crowd at the 138th Street entrance was also
continuing to pressure the doors. X-Men personnel and police
officers attempted to control the crowd but to no avail. One X-
Men guard observed a woman's leg being pinned under one of the
toppled barricades but, as he attempted to bend down and assist
the woman, the force of the crowd pushed him into the lobby of
the building. The outer glass doors on the northern side of the
138th Street entrance were shattered and were pulled off the
hinges and X-Men security personnel inside the lobby were
attempting to contain the people in the vestibule area.
F
^^^m At approximately 6:20 pm, two additional sergeants and
^^^^k.fteen police officers from the Manhattan North Task Force
^^^Hbgether with five additional officers from the 30th Precinct
^^^Pnrrived on the scene and began clearing the sidewalk and street
area .-.ear the 138th Street entrance. At approximately 6:30 pm,
Duty Captain Daniel Carlin, who was regularly assigned to the
34th Precinct, was monitoring the activities by radio, arrived on
the scene and directed his officers to barricade the northern set
of doors at the 138th Street entrance. The doors were barricaded
and the individuals were directed to the southern set of doors.
Additional officers were assigned to place barricades in front of
the lobby windows and create a frozen zone. Other officers were
detailed to maintain the crowd on the sidewalk on Convent Avenue
between the 138th and 136th Street entrance. At this time, 29
additional officers from the 32nd Precinct, who had been
mobilized by the precinct at the request of the Duty Captain,
arrived on the scene an^ assisted in crowd control efforts. The
police force then consisted of the Duty Captain, three sergeants
and fifty nine officers. They were deployed in the following
manner: (a) one sergeant and 15 officers were assigned to the
138th Street entrance to the building'; (b) one sergeant and 15
officers were assigned to Convent Avenue between 136th and 138th
Streets; (c) one sergeant and 15 officers were assigned to the
136th Street entrance to the building; and (d) one sergeant and
11 officers were at-large for deployment.
Accordinq to various witnesses, the outside crowd
appeared to begin to become under control at approximately 6:50
p.m. At approximately 6:50 p.m. Mr. Delaney left his office
across the street from the gym, approached Captain Carlin and
introduced himself as the Director of Security. In rMponse to
the captain's inquiry, Mr. Delaney advised him that there were no
problems and that security, which he mistakenly identified as
Fruit of Islam, was handling the lobby area and campus security
was in the gym. Notably, Mr. Delaney had not been in the gym
prior to that point, and apparently was unaware of the conditions
in the gym and in the lobby. He later gained entry to the gym
through a rear entrance.
For the next several minutes, the crowd was being
contained in the southern vestibule area and frisks were
continuing to be conducted by X-Men personnel. The vestibule
area was filled with people and the lobby traffic was heavy.
During this approximate time period (i.e. 6:50 p.m.) Sean Combs
and Jessica Rosenblum were in the lobby area and concern was
expressed over the need to secure the money at the ticket taBl^s.'
Ms. Rosenblum then proceeded to pick up the two cashier trays
filled with money in her ar~ and walk down the stairs into the
gym. Ms. Rosenblum was followed by one of Mr. combs' guards and
four of the women seated at the ticket tables. Other members of
Mr. Combs' staff remained in the lobby, including Sean Combs, to
take tickets.
33
One witness, Benjamin Andrews, had entered the lobby
at this approximate time. Mr. Andrews had arrived at the campus
at 6:40 - 6:45 p.m. with his cousin and several friends who were
part of a rap group (Mr. Andrew's cousin and two of his friends
were fatal victims of the crush in the stairwell) and aade their
way to the 138th Street entrance. Mr. Andrews' group were able
to gain access to the lobby because of their connection with the
rap group. When they entered the lobby, there were several
people in the lobby but it did not appear that there were any
ticket takers in the area. Mr. Andrews and his friends proceeded
down the stairwell — at that time, the doors to the gym were all
closed and approximately 50 persons were standing at the bottom
of the stairs. Mr. Andrews indicated that the crowd was waiting
for the door to open for a minute or two — no pushing occurred
during that time.
A few minutes later, the crowd above surged into the
lobby and proceeded down the stairwell. Several witnesses stated
that the ticket tables were pushed aside and people began running
down the stairs. There was no security personnel on the
staircase. Sean Combs had already run down the stairs and was
able to gain access to the gym through one of the doors. Once
inside, Mr. Combs, and others at the door, began pulling people
into the gym who appeared to have passed out in the stairwell
because of the pressure of the crowd.
w
P^^^ Mr. Andrews, who was still on the stairwell at this
time, estimated that a irush of at least 150 persons ran into the
stairwell and began pushing against the individuals who were
already standing at the bottom. The one door at the bottom of
the stairs was slightly open. Mr. Andrews was standing near the
stairwell wall and began to have difficulty breathing because of
the pressure against his chest. He squatted down against the
wall to relieve the pressure but within a few minutes he began to
pass out because of the heat and lack of air.
Several officers positioned outside the 138th Street
lobby indicated that the lobby and stairwell was filled with
people at this point. One officer observed a commotion on the
stairwell, and relayed this information to the Duty captain who
was standing nearby. The Duty captain responded by indicating
that he was targeting his efforts towards gaining control of the
crowd outside the building.
During this time, several Pinkerton guards who were
standing in the lobby area of the l38th Street entrance overheard
a radio transmission on their walkie-talkies stating "people
going down." The radio transmission, which was logged in at 7:11
p.m., was made by Lieutenant Anthony Hicks, a Pinkerton guard who
had been in the rear of the gym and had walked over to the 13 8th
Street stairwell entrance as the first few victims were being
pulled in. The Pinkerton guards in the 138th Street lobby were
9 .
unable to gain access to the gym through the stairwell because of
the crowd, so they ran down the corridor to other gym entrances.
As they were running, the guards overheard a radio transmission
from Lieutenant Hicks to the Security Office dispatcher
requesting ambulances. That radio transmission was made at
approximately 7:24 p.m., and the CCNY Security Office dispatcher
relayed the transmission to the 26th Precinct sometime
thereafter.
Individuals inside the gymnasium in the area of the
138th Street entrance stairwell were making efforts to open the
door on the far right side and pull people into the gym. Several
bodies were pulled into the gym and several individuals on the
stairwell were able to gain entry. A video tape taken of the
scene reflects that the process of emptying the stairwell took
approximately ten minutes. It is estimated that the crush in the
stairwell originated at approximately" 6 : 55 pm.
Bodies of the victims of the crush in the stairwell
were placed on the floor immediately inside the doorway and
various individuals on the scene began to perform CPR on the
victims in an attempt to resuscitate them.
Benjamin Andrews, who had started passing out on the
stairs, indicated that someone came into the stairwell and helped
him stand up and get some air. When Mr. Andrews entered the gym.
he observed various people lying on the floor, including several
friends, and more people were being dragged into the gyn from the
stairwell. Mr. Andrews took a friend's portable phone and called
911 to request ambulances. A review of the 911 audio tapes and
transcripts indicate that Mr. Andrews' call at 7:04 p. a. was the
first call made to 911.
While the process of clearing the stairwell was under
way, the gym was approximately three-quarters full and most of
the individuals in the gym were unaware of the problems in and
around the stairwell. Rap artist, Doug E. Fresh, who was aware
of some commotion in that area, took control of the microphone
which had been set up for the game and made repeated requests to
have individuals clear the area in front of the doors. VJhen he
was made aware of the need for medical attention, he requested
that those in the gym with cellular telephones call 911 for
airibulances , and he asked those who knew CPR to go to the front
stairway area. Several persons at that approximate time called
911 from a pay phone which was located in the rear of the gym.
During this time, John Araouzos, who was in the rear
of the gym with Vice President George McDonald and Athletic
Director Paul Bobb became concerned over the size of the crowd.
None of the men were aware of the commotion at the entrance to
the gym. Mr. Araouzos decided to go to the front lobby to
request that ticket sales cease. When he arrived at the
stairwell at the entrance of the gym at approximately 6:45 - 7:00
p.m., he observed several people on the floor receiving CPR. Mr.
Araouzos forced his way up the crowded stairwell and out of the
lobby area which was filled with people. Mr. Araouzos proceeded
to the Duty Captain who was standing on the sidewalk in front of
the 138th Street entrance, and requested assistance in the gym.
According to Mr. Araouzos, although he indicated that medical
assistance was needed inside the building, the Duty Captain was
initially unresponsive and lectured him at length that the police
were only responsible for maintaining order outside the gym.
Several minutes later, the captain radioed for assistance.
Although Captain Carlin recalled speaking to Mr. Araouzos, he
stated that Mr. Araouzos initially indicated concern for damage
in the gym — it was only after another individual came over and
stated that people were "falling out" that he understood the
gravity of the situation and he immediately called for medical
At this same time, several officers stationed in front
of the 138th Street entrance, observed a number of people runr-mg'
up the stairwell, banging on the glass panes and requesting
ambulances. The informatior as relayed to the Duty Captain who
radioed for assistance. Several officers were then sent into the
138th Street lobby in an effort to clear the area. Two officers
inside the lobby were approached by an unknown black male who
requested that they follow him into the gym to assist injured
persons inside. The officers followed the man down a corridor
off the lobby and eventually entered the gym through the rear
entrance at approximately 7:25 p.m. A third officer who remained
in the lobby was confronted by another surge of individuals
seeking entry into the gym, and the officer was forced down the
stairwell into the gym. Upon entry, the officer observed several
people laying on the floor and he began administering CPR to
certain individuals. The officer then ran up the stairwell to
the street to obtain assistance, at which time, he observed an
EMS unit at the 13 6th Street entrance to the building.
The first call to 911 for assistance at CCNY was
received at 7:04 p.m. The caller was an unidentified male
requesting an ambulance at City College because "people are dying
inside of City College". Despite the request of the 911
dispatcher for the caller to remain on the line to speak to the
EMS operator, the caller hung up. The 911 dispatcher attempted
contact with the police detail to verify the request for an
ambulance, but contact could not be made. The call was relayed
to EMS and entered into the EMS Computer Dispatch (CAD) System at
7:05 p.m. (CAD # 2216). At 7:10 pm, following a review of call
information, CAD #2216 was assigned a low priority based upon
lac)c of specific information concerning the location and type of
At 7:14 pm, a second call was received by 911
reporting shots fired in front of CCNY. When asked if anyone was
hurt, the caller stated "yeah, people are fainting outside". The
caller then requested "a lot of cops and ambulances". That call
was assigned Job #9501. The 911 dispatcher contacted the police
detail on the scene advising them of the shots fired call and
requesting verification. At 7:16 pm the detail sergeant on the
scene advised the dispatcher that the shots fired call was
"unfounded" and the police dispatcher entered a 10-90X
"unfounded" message into the Job #9501 call file. That portion
of Job #9501 requesting an ambulance was relayed to EMS at 7:17
p.m. through the 911 system — included within the job text was
the 10-90X "unfounded" message entered by the 911 dispatcher.
Believing that the "unfounded" message related to the ambulance
request as well as the shots fired portion of the call, EMS
canceled the call at 7:19 pm.
At 7:20 pm. , the 911 dispatcher received a call from a
female caller stating that numerous people were hurt, several
people were not breathing and requesting five ambulances at City
College. The caller was forwarded to EMS at 7:22 p.m. The EMS
dispatcher advised the caller that the previous request for an
ambulance was "closed" because "somebody canceled it". The
caller reiterated the need for an ambulance inside the auditorium
because at least 6 or 7 people are passed out. At 7:23 p.m., the
first EMS unit was dispatched to the scene.
The first EMS unit arrived on the scene at
approximately 7:28 pm. and pulled up in front of the 136th Street
entrance on Convent Avenue. One of the two EMS personnel in the
unit asked several police officers in the area about the need for
medical assistance — none of the police officers were aware of
any problem. At that point, two security guards approached the
EMS personnel indicating that there was" chaos" in the gym and
that several people were hurt. EMS personnel requested the
police to escort them downstairs; however, the officers responded
that they were directed not to enter the building. The log of
radio transmissions by police on the scene verify a 7:29 p.m.
radio transmission from the Detail Sergeant indicating: "Central,
authority of Duty Captain, no police officers are going into
CCNY. E.M.S., when they go in, will iTscertain from security
inside. Authority of the Duty Captain."
The EMS personnel proceeded to leave their ambulance
at the 136th Street entrance and carried their equipment towards
the 138th Street entrance where they were met by several police
officers and security personnel who escorted them down the stairs
into the gymnasium. Upon entering the gymnasium the EMS
personnel attempted to work on the various victims on the floor.
Both technicians stated that they were pulled and grabbed by
persons inside the gym seeking treatment for their friends and
In response to additional calls to 911 for medical
assistance at CCNY and requests for additional help from the EMS
unit and NYPD on the scene, additional ambulances were dispatched
to the gym. A total of 22 ambulances, 10 officers and 2
specialty units were eventually dispatched to the scene — the
bulk of EMS resources arrived at 7:49 pm. Upon arrival in the
gym, the conduct of the EMS personnel and the police officers
appears to have been exemplary. The first patients were
transported at 7:55 p.m. Six victims were reported dead at 7:56
p.m. Two additional victims were pronounced dead at area
hospitals later that evening. The ninth victim remained on life
support until January 1, 1992, at which time she died.
Following the arrival of EMS and NYPD into the gym,
the crowd was directed to leave the gym by the rear entrance. As
the individuals began to leave the building, a crowd ran back
into the gym because they heard what appeared to be several shots
being fired. There was no corroboration of shots actually being
fired. Several minutes later, the crowd was directed to resume
leaving the gym through two rear entrances. The gym was
eventually emptied and the location was secured.
42
G. pgl^ted Infgnnatigp
The New York City Fire Department's Manhattan Dispatch
operator received a notification from the EMS dispatcher at 7:28
p.m. advising the operator of a call of a cardiac arrest at the
CCNY gym. The notification was made under NYFD/EMS First
Responder protocol. However, since the call was not within the
First Responder Pilot Program area, the EMS operator was advised
the Fire Department would not respond. Subsequent calls were
made and received by the Fire Department Dispatcher sometime
after 8:00 p.m. regarding the incident occurring at CCNY;
however, the Fire Department's assistance was not rec[uested.
The Chief Medical Examiner, Dr. Charles Hirsch, stated
that the cause of death for each of the victims was asphyxia due
to compression of the chest. No broken bones were found in any
of the deceased. According to Dr. Hirsch, if an individual's
chest is compressed and breathing is prevented for a period of
one to two minutes, the individual will lose consciousness, and
if the compression continues for an additional period of 2 to 5
minutes thereafter, the ind dual's brain functioning will
terminate. Although an individual's heart function may be
resumed thereafter by the use of CPR, as in the case of the ninth
victim of the CCNY tragedy, the individual will have already
sustained irreversible brain damage.
43
By letter dated December 30, 1991, Martin Garbus, Esq.
advised Mayor Dinkins that he represented Sean Combs (a/k/a Puff
Daddy) and that Mr. Combs intended to fully cooperate with this
investigation. The following morning, I telephoned Mr. Garbus
and, during our conversation, he indicated that Mr. Combs had
authorized him to turn over to the City the proceeds of the
December 28th game, estimated at that time to be between
$22,000 - $25,000. In response to my request for the proceeds,
Mr. Garbus delivered a check made out to the City of New York, to
me on December 31, 1991 in the amount of $24,581. According to
Mr. Combs and Ms. Rosenblum, these monies reflect the proceeds of
the game after certain expenses were paid. At my request, Ms.
Rosenblum provided an approximate accounting of the expenses paid
out of the proceeds. The accounting, which was included in a
letter dated January 9, 1992 from Mr. Garbus, Ms. Rosenblum 's
attorney, indicated that $5,530 were paid out of the proceeds —
$550 for flyers, $100 for tickets, $2,200 for radio time, $130
for supplies, $700 for basketball uniforms and $1,850 paid to
ESG.
The $24,581 Check was turned over to the Law
Department which deposited the proceeds in an escrow account
pending a determination of the lawful recipients thereof.
AKALYSIB
A review of the events leading up to the fateful
tragedy at the CCNY gymnasium on December 28, 1991 leads to the
inescapable conclusion that almost all of the individuals
involved in the event demonstrated a lack of responsibility. The
following analysis provides a description of the various areas in
which a failure of responsibility occurred.
A. Failure Of Responsibility By Offici als Of City College
The City University and CCNY officials interviewed
during this investigation acknowledged that City University and
CCNY written policies and procedures were not adhered to with
regard to this event. City University and CCNY policies reqiiire
ticket sales and distribution of student sponsored events to be
controlled and/or supervised by the college, and security for any
event on college premises is to be under the control and
supervision of the college. Special security arrangements must
be approved by the college president prior to the event, and
frisk or searches of individuals attending events on college
premises are prohibited, except by law enforcement officials.
With few exceptions, the CCNY officials interviewed during this
investigation displayed little if any knowledge of these
university and college policies. Moreover, to the extent that
the officials were aware of these policies, few efforts were made
to ensure that the ESG sponsored games conformed therewith.
In the first instance, CCNY officials abdicated their
responsibility in reviewing the appropriateness of the ESG
sponsored activities in light of university and college policies.
While the concept of student democracy and independence of
student government should be respected, such respect should not
denigrate into an abdication of the college officials'
responsibility. Mr. Jean Charles, who approved the event,
exercised little initiative in questioning Ms. Kirnon about the
nature of the celebrity games or the individuals and methods
involved in organizing the games and distributing tickets to the
events. Moreover, when Mr. Charles and Mr. Bobb viewed the
flyers advertising a number of well known rap artists who were to
participate in the December 20th game, as well as a step show as
half-time entertainment in violation of college rules some time
prior to that game, inadequate action was taken to investigate
the event. If action had been taken at that time to question ESG
representatives as to the nature of the celebrity games, it is
reasonable to assume that they would have become familiar with
the arrangements being made for the upcoming December 20th and
December 28th games, and thereby have been in a position to
either cancel the events or ensure that appropriate arrangements
were in place.
Moreover, during the week of December 23, 1991, CCNY
officials had several opportunities to take steps with regard to
the December 28th game. Firstly, Mr. Charles was aware that,
contrary to his expectations, the December 20th game attracted a
crowd of approximately 2,200 - 2,500 individuals. Although Mr.
Charles indicated that he relayed Cassaundra Kirnon's request for
additional security for the upcoming game to Charles Delaney on
December 23rd, he did not follow up on the matter in order to
ensure that appropriate arrangements had been made. As Director
of the Finley Center, one would assume that he would make every
effort to see that the events in the gymnasium were properly
coordinated. Secondly, when the true nature of the December 28th
game was made known to Vice President McDonald and Mr. Bobb on
the day prior to the game (i.e. December 27th), little initiative
was exercised to question the ESG representatives about the
arrangements for the game, or to ensure adherence to college and
university policies.
One of the most glaring aspects of the lack of
responsibility by CCNY officials is the manner in which the CCNY
Security Offica acted in this matter. During interviews
conducted during this investigation, Mr. Delaney displayed a lack
of knowledge as to the procedures to be followed in scheduling
events at CCNY and the manner in which his office receives
notification thereof. Mr. Delaney stated that he was first made
aware of the December 20th game only a few hours prior to the
game, and that he only learned of the December 28th game the
prior afternoon — although Mr. Charles stated that he spoke with
Mr. Delaney about the December 28th game on the prior Monday,
December 23rd. In each instance Mr. Delaney took no steps to
ensure that the amount of campus security for the event was
adequate or that his office's efforts were coordinated with those
of private security and the NYPD officers who would be on the
scene. Notably, the campus security detail for the event,
inadequate as it turned out to be, was increased only as a result
of the efforts of Milton David, Mr. Delaney's assistant, when he,
by chance, learned of the nature of the December 28th event on
the prior evening.
Moreover, the CCNY security detail at the game
inexplicably failed to exercise its responsibility to maintain
control and coordination of the private security at the event.
In addition to failing to have any detailed discussions at any
time prior to or at the time of the event with either the private
security personnel on the scene or the individuals sponsoring the
event in order to coordinate security, it appears that the CCNY. »
security personnel relinquished control over the doors at the
bottom of the stairwell as vM as the lobby area at the
direction of those running t.^.a event. This abdication of
responsibility was inexcusable — particularly in view of the
fact that CCNY security personnel had no prior knowledge of or
relationship with the promoter or the private security force, nor
any knowledge as to the qualifications, experience or ability of
the private security force to cope with a large crowd.
Given the CCNY security personnel's knowledge of the
layout of the building, greater control should also have been
exerted to ensure a safe entry into the gym. In this vein, a
visit to the scene demonstrated that the stairwell in question
has a relatively steep incline, and witnesses to the event stated
that the stairwell was littered with leaflets being handed out in
the lobby, thereby creating a slippery condition on the stairs.
These factors, coupled with the fact that, with one exception,
the doors at the bottom of the stairs were closed and could only
be opened from inside the gym, should have alerted campus
security to assume control over access to the stairwell and the
gymnasium, particularly given the manner in which the promoter
and private security were handling the event.
In short, CCNY officials took no steps or exercised
minimal efforts to ascertain:
1. The true nature of the event.
2. The "celebrity" participants in the game.
3. Whether outside promoters were involved, and if
: arrangements had been made for the sale and
5. How many tickets i
:her arrangements had been made for adequate
7. The qualifications and experience of outside
security in exercising crowd control. (No inquiry was made
regarding the nature of the security organization.)
3. Whether arrangements had been made for cooperation
and coordination of the various security groups, i.e. college
security, private security, and the NYPD.
9. Whether there would be a central direction of all
security, with effective means of communication among all
security groups.
10. The contents of the contract between ESG and the
11. Whether the promoter had fulfilled its
contractual obligation to obtain insurance to protect, in
addition to the promoter, ESG and CCNY.
In summary, as stated so aptly, "None so blind as
those that will not see" (Jeremiah 20).
B. Failure Of Responsibility Of CUNY
The Board of Trustees of CUNY had proaulgated a Manual
of General Policies and the University Fiscal Handbook for the
Control and Accountability of Student Activity Fees, which
generally addressed the problems which resulted in the terrible
tragedy of December 28, 1991. Adherence by CCNY to the aforesaid
manual and handbook, in all likelihood, might have averted this
dreadful disaster. It is not sufficient for the Board of
Trustees or the Chancellor to promulgate policies or rules with
minimal or no efforts to ensure meaningful implementation.
Effective steps should have been taken to see to it that the
policies and measures were implemented by each of the individual
colleges comprising the university, so as to ensure effective
supervision of student activities and fulfillment of
responsibility by the appropriate college officials.
C. Failure Of Responsibility Bv ESG Representatives
The interviews of CCNY officials and ESG officers
during this investigation revealed that the attitude displayed by
ESG representatives toward college officials and procedures can
only be characterized as cavalier at best. The students
repeatedly rebuffed any attempts by the college personnel to
elicit explanations about these events and ignored requests for
conformance with college policies. The ESG representatives acted
independently of CCNY officials and in violation of established
policies. They failed to keep the college officials informed of
their activities, and failed to reveal the true nature of the
event for which they sought approval.
Although a strong and independent student government
organization, in an environment of academic freedom, is to be
encouraged, it is also essential for students to understand that
along with rights, there is a concomitant responsibility to act
responsibly and to be accountable to college officials as well as
to other elements of the college community. In this case, the
lack of specific information provided by the ESG on the gymnasium
reservation applications regarding the nature of the celebrity
games, and the non-disclosure of the two contracts with outside
promoters for the games clearly contributed to the confusion on
the part of CCNY officials about the events and to the lack of
adequate security and crowd control arrangements on December 28,
1991. An indication that the ESG representatives were aware of
the need to disclose the two promoters' contracts to CCNY
officials is reflected by the fact that both contracts included a
signatory line for the Vice President for Student Affairs. No
signature was ever obtained and Vice President McDonald stated
that he never saw the contract with Sean Combs until later in the
evening on Decemtier 2 8th.
Moreover, by turning over total control of the
gymnasium as well as the arrangements for the game to Sean Combs
in return for a nominal donation to a scholarship fund, the ESG
representatives abdicated their responsibility to CCNY as well as
to their fellow students. The actions of the ESG placed the CCNV
gymnasium in the hands of an outside promoter, without full
disclosure to appropriate college officials of all pertinent
facts, and, in doing so, created an uncoordinated and ultimately
dangerous situation.
Furthermore, despite the fact that the promoter had
contracted with the ESG to secure insurance to protect CCNY and
ESG, as well as the promoter, the ESG representatives never made
any effort to determine whether the promoter had fulfilled his
contractual obligation; and, in fact, he did not do so.
D. Failure Of Responsibility Bv Sean Combs
Information gathered during this investigation
established that Sean Combs is a well known promoter of rap
concerts and functions and, as such, is fully aware of the ne«d
for proper preparation and coordination of such events,
particularly with regard to the need for adequate security. In
this instance, Mr. Combs spent little time making the actual
53
preparation for the game and delegated most, if not all, of the
arrangements to Louis Tucker and Tara Geter — both of whom
claimed to have no prior experience with such events. Moreover,
Mr. Combs made arrangements for extensive publicity of the game,
including numerous radio advertisements by KISS/FM, and he was
aware that over 1,500 advance tickets had been sold. These
facts, coupled with Mr. Combs' experience with rap events which
are generally attended by large numbers of rap music fans, should
have alerted Mr. Combs to the need for strong security and crowd
control. Arrangements should also have been made to provide
that, as the number of ticket holders and ticket purchasers began
reaching gym capacity, announcements would be made to the crowd
that only ticket-holders would be permitted entry to the gym.
Although Mr. Combs was aware of the fact that some campus
security would be on the scene, and he made arrangements for
additional private security, preparations should have been made
well in advance of the event to ensure that the security
personnel were known to each other and their roles during the
event were clearly defined. Notably, Mr. Richard's only contact
with the organizers of the event was with Louis Tucker — a young
man who apparently had little understanding of the importance of
coordination of security personnel.
Additionally, Mr. Combs' statement on the flyer for
the December 2 8th game that donations would be made to the "AIDS
Education Outreach Program" is also subject to question. Ms.
Geter stated that when she raised the issue of monetary donations
with Norman Williams from the Health Department's AIDS Education
and Community Outreach Program, Mr. Williams advised her that his
agency could not accept such donations. Both Mr. Williams and
Mr. Serries from that office stated that Ms. Geter never raised
the issue of monetary donations with them. In either case, Mr.
Combs' representation that a portion of the proceeds would be
donated to that office was in error. Although Mr. Combs may have
intended to provide a portion to an AIDS education organization,
it was inappropriate to have the flyers for the game printed
before specific and concrete arrangements were made in this
E. Failure Of Responsibility Bv Many Of Those Individuals
Attending Th? December 28, 1991 gvent
Witnesses' accounts of the events immediately prior to
and during the tragedy on the gymnasium stairwell, as well as an
amateur video taken of the street and lobby of the building,
reflect that, while many of the persons attending the event acted
admirably in efforts to assist the stricken individuals, there
was a lack of responsibility and self-control by a great many
individuals seeking to gain entry to the game. Despite repeated
attempts to assert order and control over the crowd outside the
gymnasium by both police and security personnel, the crowd in its
anxiety to gain admission to the game, continued to surge towards
55
the entrances with a total disregard for their fellow attendees
and school property. The various witnesses interviewed during
this investigation recounted instances of parsons being crushed
and thrown about by the crowd surging into the lobby entrances.
Despite pleas by persons in the lobby and stairwell indicating
tney were unable to breath and were injured, the crowd continued
to push forward and force themselves into an already overcrowded
stairwell, eventually causing the deaths of nine young
individuals and injuries to numerous others.
This irresponsible and inexcusable behavior
demonstrated a lack of self respect and a total disregard for
one's fellow men and women. While the excitement of the crowd,
and the desire to see an event of this nature is understandable,
one's paramount concern must be the concern for the well-being
and safety of everyone at the event. The lack of consideration
for their fellow human beings by those seeking to attend this
event undoubtedly was a significant cause of the tragedy.
F. Failwrg 9f Pegpqpsitaiuty (?f citY Aqsncjgs
1. New York City Police Department
Although hindsight provides a greater opportunity to
review and analyze a scene of a rapidly unfolding tragedy, the
facts adduced during this investigation indicatsss that thai
exercise of judgement by the police command on the scene was
highly questionable.
In the first instance, it appears that the Detail
Sergeant who arrived on the scene with 10 officers at
approximately 5:00 p.m. waited too long before see)cing additional
assistance. Eyewitness reports estimated that more than 1,000
people were on the scene at this time and more persons continued
to arrive at a steady pace. Moreover, the video tape taken of
the scene outside the lobby at approximately 5:20 p.m., reflects
that the crowd was unruly. If additional officers had been
called in prior to 6:04 p.m., when the request for the Manhattan
North Task Force was made, it is possible that the crowd may have
been brought under control earlier in the evening.
Moreover, the Duty Captain's actions later on in the
evening indicate questionable judgement in failing to move into
the lobby and assuming control at that area earlier. Prior to
arriving on the CCNY campus at 6:30 p.m., the Duty Captain had
monitored the radio transmissions from the Detail Sergeant
indicating difficulty in controlling a crowd of about 2,000
people outside the gym. Upon arriving at the scene with
additional officers, the Duty Captain properly barricaded the
northern entrance at the 138th Street lobby and began creating a
frozen zone in front of the lobby. Although the crowd outside
the building appeared to be under control, various witnesses
57
indicated that the inside lobby area was filled with people and
one officer stated that she advised the Duty Captain that a
conmiotion was occurring on the stairwell. The Captain declined
to send any officers into the lobby at that time.
Given the problems which were occurring in controlling
the crowd outside the building and the crowded nature of the
interior lobby, which was visible from the street, the Duty
Captain could have called for additional reinforcements and
clearly should have taken steps to move into the lobby earlier in
the evening in an attempt to restore order inside.
The Police Department adheres to a previously
established policy that police officers would have responsibility
for the public streets, that college security forces would be
responsible for school grounds and buildings, and that police
officials would enter the school grounds and buildings only upon
request of appropriate school officials. Nevertheless, when
there is strong evidence of a severely overcrowded situation,
dangerous to life and limb, effective police action should be
taken immediately to deal with the situation. In this case, the
observations from the exterior of the building reflected that the
security inside the lobby had lost control of the crowd.
Although the Duty Captain eventually sent officers into the
lobby, it was not until after the initial surge of people had
5S
already crowded down the stairs towards the gym and the fatal
injuries occurred.
The Duty Captain's directive, as evidenced by police
radio transmission logs, precluding officers from entering into
the building with EMS personnel is also highly questionable,
particularly given the obvious chaotic nature of the scene.
Fortunately, officers who were aware of the condition in the area
took it upon themselves to go into the gym with EMS.
I further note the transcript of police radio
transmissions during the event reflects a transmission from an
unidentified unit on the scene at 6:23 p.m. stating "They're not
people, they're animals." An internal police investigation to
determine the origin of this transmission is ongoing. This
transmission by an officer reflects an attitude which clearly is
to be condemned.
2. 911 Police/EMS Communications
The cancellation of the second call for an ambulance
at 7:16 p.m. due to the confusion in the entry of the "90-X"
"unfounded" message by the Police Dispatcher relating to the
"shots fired" portion of the call, points up the need for greater
clarity in communication between the Police and EKS dispatchers
in relaying calls and call information via the 911 computer link.
59
if the "90-X" message had been specifically linked to the "shots
fired" portion of the call, it appears that the EMS ambulance
unit would have been dispatched 5 minutes earlier.
Additionally, one might question EMS' failure to send
a unit to City College once the 7:04 p.m. anonymous call was
received, particularly given the grave nature of the call (i.e.
"people are dying") . Although specific information regarding the
location and type of emergency was not available at this time, a
unit should have been dispatched to the area. It is essential
that EMS dispatchers appreciate that calls for medical
assistance, in many instances, are made under stressful, life
threatening circumstances, when callers are highly emotional and
specific information cannot be received, or such information is
sometimes unclear. Thus, when possible, units should be
dispatched while efforts are being made to obtain more precise
information.
60
RSCOMMZMDATIONB
In the investigation of the tragic events of December
28, 1991 and the preparation of this report, one mandate, above
all, shines through clearly and sharply - it is absolutely
imperative that everything possible must be done to ensure that a
similar tragedy will never occur again, and that the loss of
these nine young lives, will not have been in vain.
Toward that end, I make the following recommendations:
A. CUNY
1. The Board of Trustees should direct a review of its
policies with regard to student campus activities and develop
comprehensive policy and procedures providing a clear program for
the assumption of appropriate responsibilities by college
officials.
2. The policy and procedures are to be applicable to
each and every college on a university-wide basis,
3. The Chancellor should take effective steps to
ensure that each college fully implements the policies and
procedures established by the Board of Trustees.
4. The Chancellor should periodically review the
implementation of these policies and procedures.
5. The Chancellor should take steps to ensure that
City College and other colleges of the CUNY system advise student
groups and organizations of CUKY policies, particularly with
regard to student activities.
B. CCNY
1. The President of CCNY and the president of each
college in the CUNY system shall fully implement the policies and
procedures established by the CUNY Board of Trustees.
2. There should be a uniform application utilized by
all city colleges to be submitted for all student sponsored
events and activities, which should require the presentation of
all pertinent facts so as to permit an informed and intelligent
decision with regard to approving the event or activity. It
should be required that the application be approved by a high-
ranking official designated by the college president. Moreover,
applications should be required to be submitted sufficiently in
advance of the event or activity to permit a meaningful review.
62
3. Particular care by each city college should be
taken to exercise control over the nujnber of tickets to be sold
or distributed for any college event and the manner of
distribution, with particular concern for the limited capacity of
the college facility.
4. Each college must assume effective control of
security for events to be held in a college facility. If outside
security is required to supplement college security, appropriate
inquiries should be made as to the experience and qualifications
of the security agency and its capacity to fulfill its
responsibilities under the direction of the college director of
security or his/her appropriate representative. There should be
close coordination with the New York City Police Department
through the precinct where the facility is located. Every effort
should be made for effective communication with all security
personnel on the scene and the NYPD, including radio contact. A
meeting should be held prior to the event among campus security,
the NYPD and private security to arrange for effective
cooperation and coordination.
5. city colleges should take steps to apprise the
student body of all university and college policies and
procedures. The college officials should strive to develop a
harmonious and cooperative relationship with student groups
within the framework of student government in order to ensure
that these policies and procedures are understood and adhered to,
with full assumption of their respective responsibilities.
6. CCNY should expeditiously conduct a thorough
review of the structure of the Nat Holstan Gywiasium and taJc*. -
steps to provide for safe and fully accessible entrances and
exits to the gymnasium. A personal visit to the scene
established that all of the doors to the gym open outward. A
viewing of the video tape further reflected that the inability to
open the gymnasium doors because of their current configuration
contributed to the compression which resulted in the deaths of
the persons in the stairwell. It is ironic that doors which were
constructed to provide a safe passage for persons escaping
danger, acted as a trap for persons surging into the stairwell
seeking entry to the gymnasium to watch a basketball game. A
similar review should be conducted by all colleges of facilities
which have a large capacity.
c. Psprggentjitivgs ot gtudenv Oirgantiatign?
Representatives of student organizations should accept
the responsibility to work harmoniously and cooperatively to
ensure a safe facility for student functions. Students must
appreciate that these policies and procedures are not intended to
restrict student independence or democracy but rather are
64
intended to protect the safety of students and other individuals
utilizing college facilities. Students should accept as an
underlying concept, that along with the status of students, and
within the framework of student democracy and student government,
there is a necessity to accept the principles of fulfillment of
responsibility and accountability for their actions.
D. City Agencies
1. Police Department
(a) The New York City Police Department should take
measures to assure that whenever a large crowd is anticipated at
a public function, a high ranking officer of the Department is
present in order to provide experienced and effective leadership
in exercising control over the circumstance.
(b) The Police Department should review its
policies and clarify the circumstances in which the police will
enter premises where the potential exists for conditions
dangerous to life or limb, or danger to property. ' '
2 . Emergency Dispatch Operations
(a) EMS, 911 and Fire Department emergency dispatch
operators should be given intensive and continual training so as
to sensitize them to the need to act promptly on the basis of
65
information which they can quickly elicit from callers seeking
emergency assistance. Speed of response is, in many instances,
imperative to save a life, or, as here, many lives. Over a
period of time it has become apparent that emergency dispatch
operators are not sufficiently attuned to the fact that emergency
calls are made under dire and life threatening circumstances and
that callers are often excited and confused — thereby unable to
provide information in a logical and orderly fashion. Intensive
and repeated training must be provided to address this situation.
I understand that the new E911 system, soon to be implemented,
will greatly enhance the emergency dispatchers' ability to obtain
information regarding the location of the caller and thus permit
the dispatcher to make efforts to secure precise information as
to the nature of the emergency in the shortest possible time
(b) A protocol should also be established for 911,
EMS and NYFD emergency dispatchers in order to ensure that
greater detail and clarity is included in messages among the
departments with regard to emergency calls within the objective
possible.
3. Fire and Buildings Departments
(a) A task force comprised of representatives of
information which they can quickly elicit from callers seeking
emergency assistance. Speed of response is, in many instances,
imperative to save a life, or, as here, many lives. Over a
period of time it has become apparent that emergency dispatch
operators are not sufficiently attuned to the fact that emergency
calls are made under dire and life threatening circumstances and
that callers are often excited and confused — thereby unable to
provide information in a logical and orderly fashion. Intensive
and repeated training must be provided to address this situation.
I understand that the new E911 system, soon to be implemented,
will greatly enhance the emergency dispatchers' ability to obtain
information regarding the location of the caller and thus permit
the dispatcher to make efforts to secure precise information as
to the nature of the emergency in the shortest possible time
(b) A protocol should also be established for 911,
EMS and NYFD emergency dispatchers in order to ensure that
greater detail and clarity is included in messages among the
departments with regard to emergency calls within the objective
to eliminate or minimize confusion to the fullest extent
possible.
3 . Fire and Buildings Departments
(a) A task force comprised of representatives of
the Department of Buildings and the New York City Fire Department
should review and analyze the applicable laws, codes and
regulations for large places of assemhly insofar as they relate
E. Tg Our Fellow Ci,^izens
We call upon our fellow citizens to demonstrate a
sense of responsibility towards one another, particularly in
large, crowded, potentially dangerous situations. This recent
phenomenon of individuals "bum-rushing" sporting and music events
resulting in the loss of life portrays a lack of care which has
become a reality of modern day life and which must be stopped
before any more lives are lost. Civility, courtesy, decency to
one another and concern for the safety of our fellow citizens
will protect each of us and inure to the benefit of all New
Yorkers and visitors.
Recommended Distribution:
Chairman of the Board of Trustees of CUNY
Chancellor of CUNY
President of each college in CUNY
Speaker of the City Council
District Attorney - New York County
Attorney General of the State of New York
Comptroller of the City of New York
Corporation Counsel
Police Commissioner
Fire Commissioner
5 Commissioner
, HHC
s Director of EMS
3ner of Investigation
3ner of Cultural Affairs
: of each student body of each CUNY college
V
5K^
CONTRACT
Agreement made this 16th day of December , 1991,
between Evening student Governr-.ent of the Finley Student
Center of The City Collage of New York, and Tuf fy
(Leader or Agent)
on behalf of video Music Box Federal SS# 098-52-1390
(Date)
>f 4PM and 12A.M .
The performance will include 50 persons, and will involve n/a
hours of rehearsal in N/A . It is agreed that as full
compensation for the services noted above, the vender shall pay
the Evening Student Government S eighteen hundred dollars iS] , 8001 .
a) Deposit of $ ;90O.OQ on 12/16/91
b) Balance of $ 9&0'. 0 0 - to be paid upon
performance on 12/20/91
(Date) (Time)
Neither party will be bound by any statements or representations
that are inconsistent with the terms of this Agreement or which
include a promise not herewith contained. Neither party may assign
Its rights nor delegate its performance under this Agreement
without first obtaining the other party';
Stipulations, if any:
ESG will arrange for a sound system
amount of $500.00, which will be o aid in full by Tuff v of Video
Music Box. ESG will provide the facility and 7 tables. Additional
se curity wjU be provided by Tuffv of Video Music Box. In the
gyent that the show is cancelled . the deposit will not be
refundable,
AGREED AND ACCEPTED: .
President, ~ ~ ^ lUmg. Group _
^^^V^ e ,- P d;e n t
Agreement made thii
Cantar of Th« City College of Naw York, and
on behalf c£
of th« rinley Studar-.t
(Nama of Group)
to parform on
sraona, and will involve houri
of rehearsal in , It ia agreed that as £uM
(Location)
compeneation ft.r thn aervicaa noted above, the vender ahai;. bo piif
a) Depofit of S_
b) Balance of S to be paid upon
perforoanca on at
(Date) (TifflC)
Keittier party will be bound by any atatementa or repre«entation» that
are inconaiatent with the tensa of thie agreeir.ant or vhioh incl-jde a
promiae not herewith cor.cained. Neither party may assign ita ri-hts
nor delegate iLs perrorriancj under this ov- «eir,«nt vi-hou*- 'icat
obtaining the other party'* written consent.
Stipulations, if any:
Frosideiit
Signature Agent
Signaturi
EXHIBIT n
CO.N'lllACT
.•\gree:nor,[. madu [!;;5 19th dny a'. Dcocinbcr, 19'J1 between The Evc-ii's S:j:;cr.t
ovcrnr^cnc of Che FInley Sti^tlcrit Cciucr of tlio City College of New York and
•.crc;n ^no.vn as iha Cor.^ractior, Federal SS= ^S^^^^7/nl^ to co-spor.s:.- a
elcur.-.y Ciskeib^i; Gaxe on Saturday, Dcrer-^ber 28, 1991 at the Nat Holrrar G,- -
•cfAcrn ihe hours of 4:00 PM and 12:C0 P.M. T!;c basketball game wii! include a rr.:;;.
O cc:ebr;-;cs froTi the S?orts/rT^.sic/;:r' :3i;c fields, ai;d will i.'.^ulvc hers of
llw Ccr^trucioi- shall cjr: v pai^ -r.i--. .^.rr. lo pro: = c: ihe Conuacicr, ihc Even.ng
S:j-- ■• Go- cT.treni and City Collcjc of New 1 o. - (COST) aiJinst ar.y d-J all c'' -s, loss
EXmBIT F
(2131 941-6500
TERWS-C.O.w'
*550
ItOO
1650
T H E
] S T ANNUAL
HEAVY D
&.
PUFF DADDY
C F ) E B R I T Y
CHARITY
n S K \ ! BAIL
GAME
THE H E A V 5 r E R 5
THE FUrF DADDY ALL-5'-
CCW GYM
-'ZAVY D'S 'P-
MIKE BIVISS (BBD
BOYZ II MEN
RED HEAD klNGPI."
ilC D4DDY KANE
lODECI
filHER MC
BLBB* (TOD»Y)
MCES-SMOOIH
F'.\WA5rcK F.EX ON "r-E : i 2 5
SA.TLUDAY, DECEMBER 28IH
CCNY CY\M 38TH i CONVENT AVESLE
DOORS OPEN 5PM.CAME TIME 6PM
J 12 IN ADVANCE/MORE AT THE DOOR
TICKETS AVAILABLE FROM
APOLLO IHEAIEB BOX OFFICE
C^^^ 24:IWI25TH5I
^"^^ fO« FtkmtK INTO CALL
(212)141-8124
PORTION OF PROCEEDS DONATED K
MDS EDUCATION OLTREACH PROCRa-
INDIVIDUALS INTERVIEWED
CUNY AND CCNY OFFICIALS
Ann Reynolds, CUNY Chancellor
Bernard Harleston, CCNY President
Robert E. Diaz, CUNY Central Office
Larry Mucciolo, CUNY Central Office
Jose. A. Elique, CUNY Chief of Security
George McDonald, CCNY Vice President for Student Affairs
Jean Charles, CCNY Director of Finley Center
Paul Bobb, CCNY Director of Athletics
John Araouzos, CCNY Assistant Director of Athletics
Charles Delaney, CCNY Director of Security
Timothy Brown, CCNY Assistant of Director Security
Milton David, CCNY Assistant Director of Security
Silas Hartley, CCNY Assistant Director of Security
Roalanda Simmons, CCNY Security Dispatcher
Natalie Lynch, CCNY Security Dispatcher
Ethan Golegar, Professor, Medgar Evers College
ESG REPRESENTATIVES
Cassaundra Kirnon, ESG President (w/counsel)
Jose Frazier, ESG Treasurer (w/counsel)
Lula Ladson, ESG Vice President
PROMOTER AND PARTICIPANTS IN THE EVENT
Sean Combs (a/k/a Puff Daddy) , Event Promoter (w/counsel)
Dwight Meyers (a/)c/a Heavy D) (w/counsel)
Douglas Davis (a/)</a Doug E. Fresh)
Jessica Rosenblum, (w/counsel)
Marianna Regan (w/counsel)
Lewis Tuc)cer (w/counsel)
Tara Geter (w/counsel)
PINKERTON SECURITY
Edward Hayes, Pinkerton Account Supervisor
Jose Negron, Pinkerton security guard
Oswaldo Cruz , Pinkerton security guard
Anthony Hicks, Pinkerton security guard
Jose Vargas, Pinkerton security guard
X MEN SECURITY, INC.
Anthony Richards, President (w/counsel)
Gary Wilson, X-Men security guard (w/counsel)
Russell White, X-Men security guard (w/cc
Walter Marshall, Jr., X - Men security guard (w,
Kevin McNally, X-Men security guard (w/counsel)
Wayne Dees, X-Men security guard (w/counsel)
Boyce McNally, X-Men security guard (w/counsel)
Shirley Denton, X-Men security guard (w,'
Nina Wheeler, X-Men security guard (w/ci
Osei Jones, X-Men security guard (w/couns(
Irapaul Turner, X-Men security guard (w/cc
Abdul M. Muhammed, X-Men security guard (w/ct
Glenn Gibson, X-Men security guard (w/counsel)
Harjorie Scott, X-Men security guard (w/counsel)
NEW YORK CITY POLICE DEPARTMENT
Lee P. Brown, Police Commissioner
Raymond W. Kelly, First Deputy Commissioner
David W. Scott, Chief of Department
Mario Selvaggi, Chief of Patrol
Joseph Borelli, Chief of Detectives
Michael J. Philbin, Assistant Chief, Patrol Bureau
Captain Daniel J. Carlin, 34th Precinct
Sergeant Randall, 26th Precinct (w/counsel)
Robert Martin, NYPD
Thomas J. Flanagan, NYPD
P.O. Felicia Dulce, 26 Precinct
P.O. Patricia Rodriguez, 32 Precinc
P.O. Sean Harris, 32nd Precinct (w/
P.O. Ralph Sherlock, 32nd Precinct
P.O. Gene Mullahy, 32nd Precinct (w/counsel)
EMERGENCY MEDICAL SERVICES
David L. Diggs, EMS Executive Director
MacNeil Cross, EMS
John A. Lazzar, EMS
Steven Gilbert, EMS
Rocco Cassetta , EMS
George Hintenmeister , EMS
Richie Fox, EMS
Mark Stone, EMS
FIRE DEPARTMENT
Carlos M. Rivera, Fire Commissioner
Marlene Gold, Deputy Commissioner
Tom Kelly, Deputy Commissioner
William M. Feehan, Chief of Department
David Clinton, Counsel
Steven Gregory, Assistant Commissioner
John J. Hodgens, FDNY
Anthony Fusco, FDNV
Joseph DirXs, Executive Assistant
MEDICAL EXAMINER'S OFFICE
Dr. Charles Hirsch, Chief Medical Examiner
Stephen Cleary, OCHE
NEW YORK CITY HEALTH DEPARTMENT
Margaret Hamburg, M.D., Commisioner
Norman Williams, DOH AIDS Education & Community Outreach Division
Doris Kaufman, DOH AIDS Education & Community outreach Division
Ravenia Hayes-Cozier, DOH AIDS Education i Community Outreach
Division
Peter Serries - DOH AIDS Education & Community Outreach Division
DEPARTMENT OF MENTAL HEALTH, MENTAL RETARDATION AND ALCOHOLISM
SERVICES
Billy E. Jones, DMH Commmisioner
Altha J. Stewart, DMH
DEPARTMENT OF BUILDINGS
Rudy Rinaldi, Commissioner, Department of Buildings
David Wong, DOB
OTHERS INTERVIEWED
Nivea Brown, eyewitness
Taisha Scott, eyewitness
Benjamin Andrews, eyewitness
Rodney Holland, eyewitness
Tamara Williams, eyewitness
Shaniqua Moore, eyewitness
Lashaun Leonard, eyewitness
Toniqua Leonard, eyewitness
Joy Dickerson, individual with experience in Hip-Hop events
Sharmain Smith, eyewitness and maker of exterior video
Dewitt Gilroore, promoter of Hip-Hop events
Michelle Brown, Boss Emporium employee
Albert Dandridge, former CCNY Director of Security
George Demarest, General Manager Washington D.C. Convention
center
Langdon Johnson, Sales Director, Washington DC Convention Center
Charles Warfield, KISS/FM President (w/counsel)
Jim Garfield, private security expert
Mr. Jacobs, New York State Dormitory Authority
SUBMISSIONS
CUNY University Fiscal Handbook for the Control and Accountability
of Student Activity Fees.
CUNY Board of Trustees Bylaws and Manual of General Policy.
Various Internal Memoranda from CCNY officials
Reservation Application for John H. Finley Center for Celebrity
Basketball Game to be held on 12/20/91.
Contract between The Evening Student Government of the Finley
Center of the City College of New York, and Tuffy on behalf of
Video Music Box dated December 16, 1991.
Flyer promoting 12/20/91 celebrity game.
Reservation Application for John H. Finley Center for Celebrity
Basketball Game to be held on 12/28/91
Contract between The Evening Student Government of the City college
of New York and Tara Geter, on behalf of Sean Cotabs, dated
12/19/91.
Flyer promoting 12/28/91 celebrity game
Chronology of Events with accompanying letter written by Harry
Cohen, Esq., Staff Counsel, Pinkerton Security and
Investigation Services, dated 1/7/92.
Letter dated 12/30/91, to Mayor Dinkins from Martin Garbus, Esq.,
re: his representation of Sean Combs, and Combs' willingness
to cooperate with the investigation.
Letter dated 12/31/91 to Deputy Mayor Mollen from Martin Garbus,
Esq. , re: proceeds from event.
Letter dated 1/9/92 to Deputy Mayor Mollen from Martin Garbus,
Esq., r*: accounting of expenses.
Department of Cultural Affairs telephone logs for Cassaundra Kirnon
NYC Department of Personnel records for Cassaundra Kirnon
NYPD Post Incident Report dated January 10, 1992
EMS Post Incident Report dated December 31, 1991
Letter from David L. Diggs, Executive Director EMS, to Deputy Mayor
Mollen dated 12/31/91
NYPD Audio tape of 911 calls with transcript.
NYPD Transcript of Police Radio Transmissions.
EMS Dispatcher Audio tapes with computer printout.
FDNY Dispatcher Audio tapes.
CCNY Security Dispatch log of radio calls.
NYPD Audio tape of Anthony Dinkles interview
Audio Tapes of KISS-FM Commercials for 12/28/91 game
Amateur VHS video tape of events inside the Nat Holman Gym, evening
of 12/28/91.
Amateur VHS video tape of events outside the Finley Center, evening
of 12/28/91
Contract excerpts from 11/1/91 contract between Washington
Convention Center and Urban Concepts for "Concert/ Dance Party"
to take place on 11/2/91; promotional flyer for same.
CCNY Form Contract
For immediate release
Cll vUnlversit v
THf City ""^^^^^^^^^KK^*^
OFFICE OF UNIVERSITY R€
Contact:
Jay Hershenson
(212) 794-5317
(718) 899-2212
JOINT STATEMENT BY CHANCELLOR W. ANN REYNOLDS
THE CITY UNIVERSITY OF NEW YORK
AND PRESIDENT BERNARD W. HARLE5T0N OF THE CITY COLLEGE OF NEW YORK
JANUARY 15, 1992
We are in the process of reviewing the task force report prepared
by Deputy Mayor of Public Safety Milton Mollen. Beginning on Sunday,
December 29, 1992, Mr. Jos6 Elique, University Security Director,
initiated a review of the events subsequent to the tragedy of Decenber
23 at the City College of New York (see enclosed report) .
Many of the racommendations of Deputy Mayor Mollen 's report have
already been implemented by City college. We will vigorously work in
the days ahead to implemant and augment our recommendations furthi^r,
as appropriata.
A REPORT OP EVENTS AT THE CITV COLLEGE
ON DECEMBER 25, 1991
J0S9 A. Elique
University Director of Security
January 15, 1992
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I. SYNOPSIS OF EVENTS
On Saturday evening, December 28, 1991, while watching
television, X learned that the New York city Police
Department was reporting a Major incident at The City
College gymnasium and that fatalities had occurred.
I immediately notified the Deputy Chancellor that I was
en route to the scene. No one from The City College
had notified myself or any senior official of the
University.
I arrived at The City College at approximately 9:30
p.m. and conferred with college officials, including
President Bernard Harleston and Charles Delaney, the
College Director of Security, in an attempt to piece
together what had occurred. By the time I arrived, the
majority of the crowd had dispersed; however, there was
still a heavy media, police, fire and EMS presence.
The scene of the fatalities was strewn with paper and
debris, and six dead bodies lay covered on gym tables
awaiting the arrival of the New York City medical
examiner. The glass doors at the street level entrance
designated as SPE-13S and located at 138th Street and
Convent Avenue were shattered and secured behind police
barricades. The stairs leading to the gymnasium itself
were also strewn with paper debris.
The following is a brief synopsis of the events leading
up to the incident and of what transpired on the
evening of the December 28, 1991, based upon
information gathered at the scene and interviews with
College staff and police investigators.
Applications to use The City College's Nat Holman
Gymnasium on December 20 and December 28 were submitted
by Ms. Cassandra Kirnon, representing The city College
Evening Student Government. (Through her attorney, Ms.
Kirnon has declined to be interviewed until January
21.) Both application forms described the type of
event aa a "Celebrity Basketball Game." The
applications were not fully completed and
misrepresented the nature of th* events. Specifically,
the application forms lacked information about
attendance ejtpectations , admission fees, and the
identities of the participants. Nevertheless, both
applications were approved on December 18, 1991, by Mr.
Jean Charles, the Director of Co-currlcular Life. Mr.
Charles reports to Dr. George McDonald, the Vice
President for Student Affairs at Tha City College.
According to Mr. Charles and Mr. John Araouzos,
Associate Director of Athletics, the December 20, 1991
event occurred without incident, although some expressed
concern about the level of security coverage. According
to Mr. Charles and Mr.Delaney, the extent of the
promotion for the Deoaniber 28th event, the identities of
the celebrities, and the fact that the participants were
RAP artists were not known to them until two days before
the engagement. Ms. Kirnon, acting on behalf of the
Evening Student Government, entered into a contractual
agreement with an outside promoter without written
authorization and in violation of University policy.
College officials did not have a copy of the contract
for the December 28th event prior to the second event
itself; I obtained a copy of the contract on the
evening of the 28th from vice President McDonald, who
indicated that he was not aware of it.
On the afternoon of December 28, 1991, Mr. Delaney
arrived at approximately 3:45 pm and requested
additional NYC Police presence when he observed
approximately 1,500 people on Convent Avenue already
awaiting access to The City College gym. Between 3:45
pm and 7:05 pm, the approximate time when th« tragedy
occurred, the New York City Police presence was
augmented to S9 uniformed officers, plus four sergeants
and one captain. During this period, except for a brief
time when police entered the lobby to remove a
barricade, all police personnel were stationed on
Convent Avenue setting up and maintaining police
barricades and lines.
Campus security at The city College normally consists of
college staff and contract uniformed security guards
(Pinkerton), retained by the college and reporting to
Mr. Delaney. (Pinkerton guards were not retained
specifically for this event.) In addition, on December
28th, private security, Muslims, subsequently identified
as X-men, were enlisted by the sponsors, the students
and the promoters of the event. According to Mr.
Nagron, these private security guards engaged in
electronic searches and frisked individuals entering the
building, which is a violation of University policy.
Mr. Delaney informed me that routinely and on the 28th,
his Pinkerton guards handled security in the building
where the gyro is located, initially, there were 3
Pinkerton guards assigned to the gymnasium area.
According to Mr. Anthony Hicks, a sergeant with
Pinkerton at the time, at approximately 6:00 p.m., Ms.
Kirnon approached him inside the gym and asked him to
remove the guards from the gym area stating that "her
people" would provide security inside the gym. Her
exact words according to Hicks were: "We don't need you
guys, we have our own security." Mr. Hicks complied
with Ms, Kirnon's request in violation of University
policy. In addition, there were no collega security
posted in the stairwell leading to the gym.
There were, therefore, three security groups at The City
College on December 28th: the New York City Police
Department, stationed outside the building; City College
personnel (including Pinkertons) who were inside the
building and elsewhere on campus, but not inside the gym
or in the stairwell or lobby; and the security enlisted
by promoters and the Evening Student Government, who
were in the gym, the lobby, and entry area at the base
of the stairwell. There was no direct communication
linkage among these three groups.
The capacity of the gymnasium is 2,730; however, varying
accounts put the number of people who sought to gain
admission at 3-4,000, Advanced sale tickets were
available at two locations on West 125th Street in New
York City. On December 28th, tickets ware also sold
inside the entrance lobby which provided access to the
stairs leading down to the gyro. Control of tickets was
completely outside the purview of City College staff.
According to New York City officials, the event was
oversold, but the colleije has not been able to provide
information regarding ticket sales.
According to Mr. John Araouzos, the Associate Director
of Athletics at The City College, who was inside the
gymnasium, at approximately 6:30-6:45 p.m., the gym was
almost filled to capacity. He walked towards the
northwest doors and, as he approached, he noticed two
individuals lying on the floor, apparently injured,
unconscious and being given CPU by parties unknown to
him. Ha further observed two or three people holding
the northwest doors closed. He opened these doors and
was alarmed by the fact that the base of the stairs on
the other side of the doors, as well as the stairwell,
was filled with people. Mr. Araousos pushed his way
through the crowd, up the stairs and through the street
level lobby and reached a uniformed New York City Police
Officer, asking him to identify the ranking police
superior officer on the scene. Mr. Araouzos was
directed to a New York City Police captain, whom I
subsequently identified as Captain Daniel Carlin.
According to Mr. Araouzos, he informed Captain Carlin of
the crowd conditions and injured persons and requested
police assistance. According to Mr. Araouzos, he was
"lectured by the Captain" for five to ten minutes;
however, when I questioned the amount of time, which is
considerable in this context, Mr. Araouzos indicated
that it might have been less. Whatever period of time
elapsed. Captain Carlin proceeded to summon help on his
"walkie-talkie," and New York City polica officers then
cleared the street level lobby and the stairwell,
facilitating entry of the EMS personnel. Throughout
this time, both Mr. Dalaney and Dr. McDonald, vera
inside the gymnasium by the southeast doors. Neither
saw what Mr. Araouzos related. A short time after Mr.
Araouzos left, Sgt. Anthony Hicks (Pinkerton) heard
screams and responded to the northwest doors. At about
7:00 p.m., he radioed for back-up stating "emergency at
133 doors, people on the floor, send back-up." A few
minutes later he called again, this time requesting EMS:
"We need EMS, people passed out all over the floor."
Mr. Hicks and Mr. Negron, also of Pinkerton,
administered CPR to some of the victims.
Earlier in the evening, between 6:15 and 6i30 p.m., Mr.
Negron observed that the two sets of glass doors on
Convent Avenue that were used to funnel people into the
building had been broken. Mr. Negron also observed (but
did not notify other college officials) a young woman,
who had fainted outside, being carried over the heads of
the crowd into the building.
The exact cause of a "surge," if there was one, has, to
date, not been ascertained. It is clear, however, that
the crowd had been building for more than an hour. The
victims, ultimately reaching nine, all died as a result
of asphyxiation when their bodies were so compressed
that they were unable to breathe. Th« medical examiner
has since reported that none of the victims suffered any
broken bones.
Of the total of 29 Pinkerton guards assigned to the
science building complex that evening, three were CPR
trained and two, Mr. Negron and Mr. Hicks, actually
administered CPR to some of the victims. According to
college staff, the Injured were brought into the gym
from the stairwell and given aid.
A similar event also advertised as a "Celebrity
Basketball Game" was sponsored by the Evening Student
Government of The City College at the same gymnasium on
Friday, December 20, 1991. Although there were no
injuries or reported mishaps on the 20th, Mr. Araouzos
expressed concerns about what he felt was insufficient
security to Ms. Klrnon and Mr. Charles at that time and
to Mr. Delaney and Paul Bobb, the Athletic Director, at
a subsequent time. Mr. Araouzos and Mr. Charles were
both in attendance. The event of the ioth also featured
RAP artists and admission was charged. City College
officials have been unable to confirm whether any
contract was executed between the Evening Student
Government and others in connection with the December
2 0th event.
II. CONCERNS AND RECOMMENDATIONS
Administrative Concerns!
1. The application fontis requesting authorization for
the events on December 20th and 28th were incomplete and
contained misrepresentations. Specifically, the
anticipated attendance was not stipulated; there was no
admissions charge indicated; and although the
applications indicated a celebrity basketball game, the
celebrities were not identified. Nevertheless, on
December 18th the applications were approved by Mr.
Charles without inquiry regarding the aissing
information.
2. On December 30th, a "Celebrity Basketball Game" was
held in the same gymnasium and included RAP artists.
Although there reportedly were some security concerns,
the December 20th event tooX place without Incident.
According to President Harleston, who was not aware of
either event, usage of the gymnasium for this type of
activity is prohibited.
3. The nature of the December 28th event was known at
least two full days prior to the performance. Moreover,
a similar event held on December 20th should have
alerted college officials to the actual nature of the
December 2Sth event, particularly since applications for
both events were virtually identical and submitted
together.
4. Mr. Charles Dalansy never informed his superior, Mr.
Jon Vellin, vice President of Administration, in advance
of either event. However, Mr. Delaney did speak with
vice President McDonald regarding the December 2ath
event.
5. A daily security report, submitted by Mr. Delaney to
Mr. Vellin on the 23rd, failed to mention the event on
the 20th.
6. A contract for the December 28th event waa entered
into betveen the promoters and the student government
sponsors instead of City College officials. Mr.
Charles, the City College official who authorized the
space reservation, indicated that he was not aware of
the contract before or after the authorization form was
signed. Dr. McDonald cannot confirm whether a contract
document exists for December 20th.
7. Since the application form did not indicate that
tickets would be sold, there was no college control of
ticket printing, proir.otion, or sales.
8. To date, there has been no college accounting for
the revenue generated by either event. The University
Office of Internal Audit is currently reviewing these
matters, as veil as authorization of vendors present in
the building.
Security Concerns:
1. There was no comprehensive college security plan for
either event.
2. according to Mr. Delaney, the normal complement of
campus security personnel on a Saturday 3p« to 11 p.m.
shift is 18 security patrol officers and 3 security
sergeants, on the night of December 28th, there were 23
security officers and 7 supervisors. Thus, the normal
complement was increased by nine. Only 3 college guards
were assigned to the gym itself area. The security
presence was removed from out the gymnasium at the
request of Ms. Kirnon. There were no college guards
assigned to the lobby and stairwell in which the tragedy
occurred, nor was a guard assigned with a radio to New
Vork City Police Department supervisory personnel at the
scene on Convent Avenue, in addition, there were no
radio or other conmiunication protocols established
between the college and the promoters, student
government members and the security personnel that they
retained. Neither Mr. Delaney nor Ms. Kirnon took steps
to establish a communications network.
3 . City College permitted the non-college security
staff retained by the students to be responsible for
security in the gym and lobby. City College also
permitted the non-college security to frisk persons
entering the building. These private security had no
reporting responsibility to the City College Security
Director. Thus, contrary to University policy, there
was no centralized control of the building security and
frisking was allowed to occur.
4. Security personnel provided by the promoters and
student government were neither readily identifiable nor
uniformed.
5. There was no prior notification to the University
Security Director of these events. All colleges were
informed of my availability for technical assistance for
special events in the Fall.
6. There were no written post duties or instructions
distributed to the security force on the evening of the
tragedy .
7, Ticket sales were allowed "at the door" inside the
same entrance where hundreds of ticket holders would
have to pass.
Recomniendations!
1. Notification to the University Security Director by
the college Security Director should be required
whenever a college is contemplating sponsoring or
hosting any event which is deemed to be a security risk
or gives rise to a concern for public safety. The
security plans for such events should be developed by
the College Security Director in consultation with the
University Security Director.
2. Campus security is the direct responsibility of the
College Security Director-. All security staff must be
under the control of the college. Except for
appropriate law enforcement officials, all security
personnel must take direction from the College Security
Director or his designee when on college property.
3. It has already been announced that The City College
has agreed to participate in the first phase of the
University's security initiative. This will strengthen
College security by providing trained peace officers.
Every effort should be made to accelerate the
restructuring of The City College security program
through this effort.
4. Applications for such special events on college
campuses should be submitted no later than 3 0 days prior
to the event.
5. The applicants should be provided with a written
statement of applicable college policies and
regulation*, with emphasis placed on security
requirements. The application forms should require the
applicant to acknowledge j.n writing the receipt of and
agreement with these requirements. An operational
security plan prepared by ..he Coi;age Security Director
should be submitted to the University Security Director
for review two weeks prior to the event.
6. A Central Office team, including the University
Security Director, should examine the college reviews of
security management and facilities usage that have
already been requested by the Deputy Chancellor. It is
essential that college policies and procedures be clear,
consistent and enforced. Overall responsibility far
approving events should be well defined. In addition,
authority to cancel an event should a safety concern
arise after the event is approved should be made clear.
7. The University security Officer should review the
availability of electronic comaiunications systems and
security equipment on the campuses and make appropriate
recommendations regarding critical needs.
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